CONSTITUTIONAL COURT OF SOUTH AFRICA Case CCT 73/03 XOLISILE ZONDI Applicant versus MEMBER OF THE EXECUTIVE COUNCIL FOR TRADITIONAL AND LOCAL GOVERNMENT AFFAIRS WILLIAM STEENBURG KOBUS BOTHA RICHARD COOK First Respondent Second Respondent Third Respondent Fourth Respondent Heard on : 9 March 2004 Decided on : 15 October 2004 JUDGMENT NGCOBO J: Introduction [1] This case concerns the constitutional validity of sections 8, 10(2), 12, 16(1), 29(1), 33, 34, 37, and 41(4) of the Pound Ordinance (KwaZulu-Natal), 1947 1 (the Ordinance ). The question is whether these provisions unjustifiably limit the right of 1 No 32 of 1947. These provisions are cited in full at paras 65, 88, 107 and 110.
access to courts; 2 the right to equality; 3 the right to administrative action; 4 and the other rights asserted by the applicant. 5 [2] In substance, the impugned sections make provision for: immediate seizure and impoundment of trespassing animals by a landowner without notice to the livestock owner unless the livestock owner happens to be an owner of land immediately adjacent and which bears the registered brand of that owner ; 6 the assessment of damages by two disinterested persons, who must be voters, as defined in the Electoral Act, 1979 7 (the Electoral Act ), or landowners; 8 payment of impoundment fees and damages by the livestock owner; 9 the sale in execution of impounded animals if the livestock owner is unable to pay such fees and damages; 10 the disposal of animals that are not sold after the auction, including animals that are either too vicious to be driven to the pound or kept at a pound; 11 and notice to be given to livestock 2 Section 34 of the Constitution. 3 Section 9 of the Constitution. 4 Section 33 of the Constitution. 5 These include the constitutional rights: against arbitrary deprivation of property (section 25(1)); the right to have access to sufficient food (section 27(1)(b)); every child s right to basic nutrition (section 28(1)(c)); the right to dignity (section 10); the right to enjoy culture (sections 30 and 31); and the obligation of the state to respect, protect, promote and fulfil the rights in the Bill of Rights (section 7(2)); and international human rights. 6 Section 16(1) of the Ordinance. 7 Act 45 of 1979. 8 Section 29(1) of the Ordinance. 9 Sections 26-30 of the Ordinance. 10 Sections 33-34 and 37 of the Ordinance. 11 Sections 10(2), 37 and 41(4) of the Ordinance. 2
owners who are known. 12 From start to finish there is no intervention of the judicial process. Factual Background [3] The applicant is Mrs Xolisile Zondi. She is the widow of the late Mr Makhelwane Zondi who was a labourer on a farm, Thornview, where he resided with the applicant. Mr Cook, the fourth respondent in these proceedings, owns the farm. The deceased and the applicant had resided on the farm for more than 25 years. Her only asset is her livestock, consisting of 28 head of cattle and 18 goats, conservatively valued at R44 600, which she inherited from the deceased. She is unemployed and has no cash in the bank. To meet her daily expenses, she depends on the proceeds of her livestock. From time to time, she sells calves to meet her expenses, such as school fees, medical bills and other household costs. The livestock also provides a source of nourishment in the form of meat and milk. She also uses the cattle in the observance of traditional ceremonies and rituals. She has no land that she can call her own. She has resided on the farm since the death of her husband. [4] What gave rise to the present litigation is a letter of demand that was sent to the applicant on 14 February 2003, at the instance of Mr Cook. That letter called upon the applicant to remove her livestock from the farm by 14 March 2003. It warned that if she failed to comply with the demand, her livestock would be impounded. The letter further told her that arrangements had already been made to remove her livestock to 12 Sections 10(2) and 41(4) of the Ordinance. 3
the pound on 15 March 2003 were she to fail to comply with the demand. The pound to which they were to be removed was not identified, despite a request by the applicant to do so. [5] It is apparent from the letter of demand that Mrs Zondi had previously been required to remove the livestock from the farm and that she had not complied. It is not clear from the papers and we do not know why this demand was issued because Mr Cook did not oppose the proceedings. The terms of the letter do not suggest that Mrs Zondi s cattle have wandered onto his land without permission, but rather that he has terminated permission previously given to Mrs Zondi to keep the cattle on the land. Whether Mr Cook is entitled to terminate such permission is not something that is in issue in the case at this stage. Nor is it something we can determine on the papers as they stand. It should be mentioned that in her papers, however, Mrs Zondi alleges that the arbitrary removal of the livestock of poor Blacks in the rural areas is a favoured means of harassing or intimidating them, and that in her knowledge and experience, it occurs regularly for reasons that have nothing to do with trespass of livestock. As we have not heard Mr Cook s reason for issuing the letter of demand we cannot surmise further as to why the demand was issued. [6] The letter of demand precipitated a two-part urgent application to the High Court in Pietermaritzburg (the High Court ) to block the threatened impoundment. The first part of the application sought an interdict restraining the fourth respondent and the poundkeepers of Weenen and Dundee from impounding the applicant s 4
livestock. Both poundkeepers were cited because the applicant was uncertain as to which pound her livestock would be taken to for impoundment. The second part of the application sought an order declaring the impugned provisions to be inconsistent with the Constitution. On 11 March 2003, the interdict part of the application, which was not opposed, was granted. It blocked the threatened impoundment pending the final determination of the constitutional challenge. [7] The Member of the Executive Council for Traditional and Local Government Affairs, KwaZulu-Natal (the MEC ), was one of the respondents against whom the relief was sought and granted. While the MEC elected to abide by the decision of the High Court on the constitutional challenge, an affidavit was nevertheless filed on his behalf. In that affidavit, he expressed the belief that it was not appropriate for the High Court to decide the constitutional validity of the impugned provisions as there had been no trespass on the applicant s version and pointed to the fact that the Ordinance did not apply to local authorities. Despite being called upon by the High Court to make submissions on the appropriate relief, the MEC persisted in his attitude that the constitutionality of the impugned provisions should not be reached. [8] The High Court upheld the constitutional challenge and found that: (a) sections 16(1), 29(1), 33 and 34 of the Ordinance permit self-help and therefore violate the right of access to courts guaranteed in section 34 of the Constitution; and (b) sections 8, 10(2), 12, 16(1), 29(1), 37 and 41(4) violated sections 33 and 34 of the Constitution in that they make no provision for prior notice to the livestock owner or they require 5
notice only if the stockowner is known. These provisions were also found to be inconsistent with section 3(1) and (2) of the Promotion of Administrative Justice Act ( PAJA ). 13 In addition, the High Court found that section 29(1) discriminates on the basis of race and landlessness in that it requires a person who assesses damages to be either a voter or a landowner. It also found section 16(1) inconsistent with section 25(1) of the Constitution in that it permits arbitrary deprivation of property. 14 [9] Having found that neither reading-in nor severance was appropriate in this case, the High Court declared the impugned provisions to be inconsistent with the Constitution and therefore invalid. It thereafter referred its order of invalidity to this Court for confirmation in terms of section 172(2)(a) of the Constitution, which provides that an order of constitutional invalidity made by a High Court is of no force unless confirmed by this Court. However, the MEC has also noted an appeal against the decision of the High Court. What this Court therefore now has to consider is whether or not to confirm the order declaring the impugned provisions invalid. [10] Before considering the constitutional validity of the impugned provisions, it will be convenient at this stage to deal with the preliminary matters that arose in this case. These are: the application for direct access by the applicant to enable her to now challenge the constitutional validity of the entire Ordinance, or alternatively to challenge further provisions of the Ordinance; the application by the MEC for leave to 13 Act 3 of 2000. 14 The judgment of the High Court has since been reported as Zondi v Member of the Executive Council for Traditional and Local Government Affairs and Others 2004 (5) BCLR 547 (N). 6
introduce further evidence in this Court; and the question whether the order of invalidity is subject to confirmation by this Court. Application for direct access [11] On the eve of the hearing of this matter, the applicant brought an application for direct access in which she sought an order permitting her to challenge the validity of the entire Ordinance or, alternatively, further provisions of the Ordinance. This application, which was opposed by the MEC, was heard in limine. After argument, the Court made an order dismissing the application and indicated that reasons for that order would be furnished in the course of this judgment. Here are those reasons. [12] The frequency with which applications for direct access occur renders it necessary to restate the legal principles that are applicable in the granting of such applications. Such applications are governed by rule 18 of the rules of this Court read with section 167(6)(a) of the Constitution, read further with section 8 of the Constitutional Court Complementary Act. 15 Under these provisions, this Court has discretion whether to grant direct access but an application will only be granted if it is in the interests of justice to grant it. 16 And the question whether it is in the interests of justice to grant direct access must be decided in the light of the facts of each case. 17 In 15 Act 13 of 1995. 16 S v Zuma and Others 1995 (2) SA 642 (CC); 1995 (4) BCLR 401 (CC) at paras 9-11; Brink v Kitshoff NO 1996 (4) SA 197 (CC); 1996 (6) BCLR 752 (CC) at para 8; Member of the Executive Council for Development Planning and Local Government, Gauteng v Democratic Party and Others 1998 (4) SA 1157 (CC); 1998 (7) BCLR 855 (CC) at para 25; and Dudley v City of Cape Town and Another 2004 (8) BCLR 805 (CC) at para 6. 17 Member of the Executive Council id at para 32; Dudley id at para 7. 7
this regard this Court will consider a range of factors. These include the importance of the constitutional issue raised and the desirability of obtaining an urgent ruling of this Court on that issue, whether any dispute of fact may arise in the case, the possibility of obtaining relief in another court, and time and costs that may be saved by coming directly to this Court. [13] An important factor, which this Court has emphasised time and again, is the undesirability of this Court sitting both as the court of first and final instance in a matter in which other courts have jurisdiction. 18 In terms of section 169 19 of the Constitution, the High Courts have constitutional jurisdiction, including the jurisdiction to make an order concerning the validity of a provision in an Act of Parliament or a provincial Act. The Constitution contemplates that such orders will be referred to this Court for confirmation. Effect must be given to this by ensuring that courts are not bypassed in matters that fall within their jurisdiction unless there are compelling reasons to do so. 20 18 Brink above n 16 at para 14; Transvaal Agricultural Union v Minister of Land Affairs and Another 1997 (2) SA 621 (CC); 1996 (12) BCLR 1573 (CC) at para 18; Bruce and Another v Fleecytex Johannesburg CC and Others 1998 (2) SA 1143 (CC); 1998 (4) BCLR 415 (CC) at para 8; Christian Education South Africa v Minister of Education 1999 (2) SA 83 (CC); 1998 (12) BCLR 103 (CC) at para 12; National Gambling Board v Premier, KwaZulu-Natal, and Others 2002 (2) SA 715 (CC); 2002 (2) BCLR 156 (CC) at para 38; Van der Spuy v General Council of the Bar of South Africa (Minister of Justice and Constitutional Development, Advocates for Transformation and Law Society of South Africa Intervening) 2002 (5) SA 392 (CC) at para 19; 2002 (10) BCLR 1092 (CC) at para 18; and Satchwell v President of the Republic of South Africa and Another 2003 (4) SA 266 (CC); 2004 (1) BCLR 1 (CC) at para 6. 19 Section 169 of the Constitution states that: A High Court may decide (a) any constitutional matter except a matter that (i) only the Constitutional Court may decide; or (ii) is assigned by an Act of Parliament to another court of a status similar to a High Court; and (b) any other matter not assigned to another court by an Act of Parliament. 20 Compare Dudley above n 16 at para 8. 8
[14] If constitutional matters could, as a matter of course, be brought directly to this Court, this Court could be called upon to decide cases without the benefit of the views of the lower courts having constitutional jurisdiction. 21 Yet the views of other courts are especially important in this early stage of the development of our constitutional jurisprudence. They help to refine our jurisprudence. As this Court held in Bruce: Experience shows that decisions are more likely to be correct if more than one court has been required to consider the issues raised. In such circumstances the losing party has an opportunity of challenging the reasoning on which the first judgment is based, and of reconsidering and refining arguments previously raised in the light of such judgment. 22 [15] This Court has therefore held that it is not ordinarily in the interests of justice for this Court to act as a court of first and last instance, in which matters are decided without there being any possibility of appealing against the decision given. 23 Compelling reasons are required to persuade this Court to exercise its discretion to grant direct access and sit as a court of first and last instance. 24 [16] With these legal principles in mind, I now turn to consider the merits of the application for direct access. 21 Id at para 7. 22 Bruce above n 18 at para 8. 23 Id; Satchwell above n 18 at para 6. 24 Id 9
[17] The applicant s challenge to the entire Ordinance rests on the proposition that pounds fall within the functional areas of a provincial legislative competence only to the extent set out for the provinces in section 155(6)(a) and (7) of the Constitution. 25 It was contended that the Ordinance, which is provincial legislation, does not deal with the matters comprehended in section 155(6)(a) and (7). The Ordinance is therefore beyond the competence of the province, the applicant asserted. In essence the applicant now raises the question of the competence of the provinces to deal with matters relating to pounds. [18] The High Court had jurisdiction under section 172(2)(a) not only to deal with this question, as it involved the constitutionality of an Ordinance, but also with the challenge to the further provisions of the Ordinance. However, these matters were not raised in the High Court. The only explanation given for the omission was to avoid a situation where it becomes apparent at the hearing that either the entire Ordinance or further provisions should have been challenged so as to obtain appropriate relief. In other words, the application for direct access is an attempt to remedy a possible omission to challenge what should have been challenged in the High Court. Indeed it 25 In relevant part, section 155 provides: (6) Each provincial government must establish municipalities in its province in a manner consistent with the legislation enacted in terms of subsections (2) and (3) and, by legislative or other measures, must - (a) provide for the monitoring and support of local government in the province;... (7) The national government, subject to section 44, and the provincial governments have the legislative and executive authority to see to the effective performance by municipalities of their functions in respect of matters listed in Schedules 4 and 5, by regulating the exercise by municipalities of their executive authority referred to in section 156(1). 10
was submitted on behalf of the applicant in the course of oral argument that the application in effect represents an attempt to amend the pleadings on appeal. [19] In Prince v President, Cape Law Society and Others 26 this Court held that a party who wishes to challenge the constitutionality of a provision in a statute must raise the challenge at the time of the institution of the legal proceedings. 27 A party cannot hope to supplement and make its case on appeal. 28 In effect what the applicant is now seeking to do through the application for direct access is to introduce a cause of action that is fundamentally different to that relied upon in the High Court. The constitutional challenge in the High Court was directed at specific provisions of the Ordinance and it was based on specific provisions of the Constitution. Applications for direct access are to be granted in exceptional circumstances and not merely to avoid consequences of failure to properly formulate a constitutional challenge. 29 [20] There are further considerations that militate against the granting of direct access in this matter. The application raises complex and difficult questions relating to the powers of municipalities and provinces in relation to pounds. A decision of this Court on this issue will have far-reaching implications for the provinces and municipalities as well as the national government. None of these spheres of 26 2001 (2) SA 388 (CC); 2001 (2) BCLR 133 (CC). 27 Id at para 22. 28 Id 29 Compare remarks by this Court in Zuma above n 16 at para 11; and Bruce above n 18 at para 22. 11
government has been joined in these proceedings. Counsel for the applicant submitted that this being a KwaZulu-Natal ordinance, other municipalities and provinces have no direct or substantial interest in the outcome. This submission overlooks the very real consequences a ruling of this Court on this issue will have for the powers of the provinces and municipalities in relation to the establishment and management of pounds. This is sufficient to call for a joinder of these spheres of government. In addition, the application was made on the eve of the hearing of this matter and left the MEC with inadequate time to investigate the issues raised in the application. [21] For all these reasons, the Court considered that it was not in the interests of justice to grant direct access and made the order dismissing the application. The application to introduce further evidence [22] The MEC seeks leave to introduce further evidence in this Court. Applications to lead further evidence in this Court are governed by rule 30, which incorporates by reference section 22 of the Supreme Court Act, 1959. 30 Section 22 confers on the court hearing an appeal a wide discretion to receive further evidence. 31 As a general 30 Act 59 of 1959. 31 Section 22 states that: The appellate division or a provincial division, or a local division having appeal jurisdiction, shall have power (a) on the hearing of an appeal to receive further evidence, either orally or by deposition before a person appointed by such division, or to remit the case to the court of first instance, or the court whose judgment is the subject of the appeal, for further hearing, with such instructions as regards the taking of further evidence or otherwise as to the division concerned seems necessary; and (b) to confirm, amend or set aside the judgment or order which is the subject of the appeal and to give any judgment or make any order which the circumstances may require. 12
matter, leave to receive further evidence will be granted where special grounds exist. 32 A factor that is generally accepted as constituting a special ground is the fact that the evidence sought to be led was either not available at the time of the trial or could not have been obtained by the exercise of proper diligence. 33 [23] In the Prince case, this Court held that considerations applicable to allowing further evidence on appeal in constitutional matters are however not necessarily the same as the considerations applicable in other matters. 34 And in Bel Porto School Governing Body and Others v Premier, Western Cape, and Another, 35 this Court made it clear that although this Court may have greater flexibility than the Supreme Court of Appeal in allowing additional evidence on appeal, it is a power which should not be exercised unless there are compelling reasons to do so. Furthermore, in the Prince case, this Court sketched the obligation of the parties when pleading in constitutional matters and said: Parties who challenge the constitutionality of a provision in a statute must raise the constitutionality of the provisions sought to be challenged at the time they institute legal proceedings. In addition, a party must place before the Court information relevant to the determination of the constitutionality of the impugned provisions. Similarly, a party seeking to justify a limitation of a constitutional right must place before the Court information relevant to the issue of justification. I would emphasise 32 Shein v Excess Insurance Company, Ltd 1912 AD 418 at 428-9; Staatspresident en n Ander v Lefuo 1990 (2) SA 679 (A) at 691C-J; and see n 26 at para 21. 33 Deintje v Gratus & Gratus 1929 AD 1 at 6-7; also see n 26 at para 21. 34 Above n 26 at para 23. 35 2002 (3) SA 265 (CC); 2002 (9) BCLR 891 (CC) at para 119. 13
that all this information must be placed before the Court of first instance. 36 (Footnote omitted.) [24] The evidence that the MEC seeks leave to introduce relates firstly to the importance of the pound legislation and the known and notorious dangers of straying animals; and secondly to the steps taken by the Department of Traditional and Local Government to revise the pound legislation and to reconcile it with the Constitution as evidenced by the KwaZulu-Natal Pound Bill of 2000 which was published for comment on 21 February 2000. The revision of the Ordinance was referred to by Mr Pienaar who deposed to an affidavit on behalf of the MEC in the High Court. However, he did not give any details of the steps taken, nor did he refer to the KwaZulu-Natal Pound Bill of 2000. It was the applicant in her reply who referred to the KwaZulu-Natal Pound Bill which was first published for comment on 29 August 1996. She alleged that no progress appears to have been made. It follows therefore that the further evidence sought to be led is either already on record or, as the MEC puts it, known and notorious. [25] The only explanation for not placing this information before the High Court was the attitude of the MEC both in this Court and in the High Court, namely, that it was not necessary to reach the constitutionality of the Ordinance. The High Court specifically requested the MEC to place before it information relating to the consequences of an order of invalidity. The MEC persisted in his attitude that it was not necessary to consider the constitutionality of the Ordinance. This was an 36 Above n 26 at para 22. 14
unfortunate stance for the MEC to take, in particular, after being called upon by the High Court to make representations on the appropriate order. [26] What the MEC now seeks to do is to place before this Court evidence that he was supposed, and was called upon, to place before the High Court. If the MEC wished to justify the pound legislation, he should have placed before the High Court information relevant to that justification. This information was not placed before the High Court because of a deliberate decision taken by the MEC not to place such information before the High Court. The MEC tied himself to a particular defence and as a result refused to place information before the High Court that he now seeks to place before this Court. This attitude of the MEC cannot be countenanced. [27] In the Prince case, this Court made it clear that parties must make out their case in their founding papers and that they would not ordinarily be allowed to supplement and make their case on appeal. 37 This Court will not grant leave to lead further evidence unless the circumstances are such that compelling reasons exist to do so. 38 Those circumstances do not exist in this case. [28] For all these reasons the application to lead further evidence must be refused. Are the orders subject to confirmation? 37 Id 38 Above n 35. 15
[29] The High Court and the parties approached the matter on the footing that the orders of invalidity are subject to confirmation in terms of sections 167(5) 39 and 172(2)(a) 40 of the Constitution. Only orders of invalidity concerning an Act of Parliament, a provincial Act or any conduct of the President are subject to confirmation. Subsequent to the hearing, a question arose as to whether the orders of invalidity are subject to confirmation in view of the fact that we are concerned here with an ordinance. The Chief Justice issued further directions requesting the parties to submit written argument dealing with the question whether the orders of invalidity are subject to confirmation, and if not, whether the MEC s appeal should be treated as an application for leave to appeal and non-compliance with the rules of this Court be condoned. [30] Inasmuch as there is an appeal by the MEC, it is not necessary to decide whether the declaration of invalidity of the Ordinance is subject to confirmation under sections 167(5) and 172(2)(a) of the Constitution. This matter will be approached on the basis of the appeal by the MEC. To this extent the MEC s notice of appeal will be treated as an application for leave to appeal. And in all the circumstances of this case, 39 Section 167(5) of the Constitution states that: The Constitutional Court makes the final decision whether an Act of Parliament, a provincial Act or conduct of the President is constitutional, and must confirm any order of invalidity made by the Supreme Court of Appeal, a High Court, or a court of similar status, before that order has any force. 40 Section 172(2)(a) of the Constitution states that: The Supreme Court of Appeal, a High Court or a court of similar status may make an order concerning the constitutional validity of an Act of Parliament, a provincial Act or any conduct of the President, but an order of constitutional invalidity has no force unless it is confirmed by the Constitutional Court. 16
it is in the interests of justice that non-compliance with the rules be condoned and that leave to appeal be granted. [31] Since Mrs Zondi has been referred to as the applicant, she will continue to be referred to as the applicant and the MEC as the respondent. [32] The MEC contended that it was not appropriate for either the High Court or this Court to determine the constitutional validity of the impugned provisions. This contention rests on the premise that on the papers it had not been shown that there was trespass so as to trigger the Ordinance. It is necessary to determine this question first. Should the constitutionality of the impugned provisions be reached? [33] In support of the contention that this is not the appropriate case to reach the constitutionality of the Ordinance, counsel for the MEC placed much reliance on the rule that requires courts, where possible, to decide cases without reaching constitutional issues. This rule was first announced by this Court in S v Mhlungu and Others 41 and its basis was later explained in Zantsi v Council of State, Ciskei, and Others. 42 41 1995 (3) SA 867 (CC); 1995 (7) BCLR 793 (CC) at para 59. 42 1995 (4) SA 615 (CC); 1995 (10) BCLR 1424 (CC) at paras 2-5. 17
[34] The rule contended for by the MEC has no application in this case. In the first place, Mrs Zondi was threatened with the use of the Ordinance. Under section 38 43 of the Constitution, she was entitled to approach the High Court for relief. In the High Court, no argument was advanced as to why the constitutional validity of the provisions of the Ordinance should not be considered. The High Court was therefore entitled to consider the constitutional validity of the impugned provisions. In the second place, the rule has no application where, as here, a High Court has declared the impugned provisions invalid. The declaration of invalidity creates an uncertainty as to the constitutional validity of the impugned provisions. It is necessary to remove this uncertainty. [35] It is also clear from the Zantsi judgment that, where the order of a High Court creates such uncertainty, it is necessary for this Court to consider the constitutional challenge. 44 Indeed this was the reason why this Court considered the constitutional issue in the Zantsi case even though it was not strictly necessary for the High Court in that case to have considered the issue. [36] Finally, where a court is concerned with legislation that is rooted in apartheid, it is necessary to cleanse the statute books of such statutes. Such statutes are 43 Section 38 of the Constitution provides: Anyone listed in this section has the right to approach a competent court, alleging that a right in the Bill of Rights has been infringed or threatened, and the court may grant appropriate relief, including a declaration of rights. The persons who may approach a court are: (a) anyone acting in their own interest. 44 Above n 42 at para 8. 18
inconsistent with the Constitution and they cannot be allowed to remain in our statute books. [37] The contention by the MEC that this is not the appropriate case to determine the constitutionality of the Ordinance must fail. It now remains to consider the constitutionality of the impugned provisions. In order to appreciate the basic purpose and effect of the impugned provisions and to evaluate the cogency of the constitutional challenge, it is necessary to understand the scheme of the Ordinance and the social context in which it operates. The social context in which the Ordinance operates [38] The impoundment of livestock occurs in a complex setting of historical deprivation of land to black South African people, the struggle for land and the need to protect farms against trespassing livestock. This setting is a consequence of our history. The Ordinance was enacted under the old legal order, which was premised on the apartheid policy. That policy was characterised by the denial of the franchise and land rights to African 45 people and racial segregation was its cornerstone. To give effect to this policy, large-scale land dispossessions and forced removals of black people, in particular, African people, took place over almost a century. 46 In the end, African people were confined to 13% of the total land in the country while white 45 Whereas the Black Administration Act uses the term Black to describe a member of the indigenous race in South Africa, the term African has been used in this judgment. Its use should not be construed as conferring legal or constitutional validity for its exclusive use to describe one race group, nor is it intended to exclude persons of other race groups who are entitled to or describe themselves as Africans. 46 Western Cape Provincial Government and Others: In re DVB Behuising (Pty) Ltd v North West Provincial Government and Another 2001 (1) SA 500 (CC); 2000 (4) BCLR 347 (CC) at para 41. 19
people owned almost all the remaining 87%. 47 African people were driven into the desolation of homelands. The Natives Land Act 48 and the Native Trust and Land Act 49 effectively made it impossible for members of the African community, a racial majority by far in this country, to own land in some 87% of the country. 50 By law, African people could not own or even occupy land in a white area like Weenen, except as labourers. 51 [39] What emerged from this policy were racially segregated residential areas, in which it was unlawful for the majority racial group to own or occupy land in an area that had been designated for occupation by the minority racial group. Residential segregation ensured that white and black people did not live side by side. This policy produced and ensured landlessness, amongst other things, for African people, and therefore social and economic disempowerment for African people. Because African people were confined to small, overcrowded and often desolate areas, they had insufficient grazing land for any livestock that they were allowed to keep. By contrast, white farmers owned vast amounts of land which was adequate for farming, grazing and irrigation. Thus it is reported that in about 1985, Weenen s 133 farmers 47 Id 48 Act 27 of 1913 at sections 2, 4 and 6. 49 Act 18 of 1936 at sections 10-12, 21 and 24-27. 50 See n 46 at para 2. 51 Id at para 41. 20
had an estimated 80 500 hectares of grazing land, 2 000 hectares of irrigated fields and 110 hectares of dryland pastures. 52 [40] In the Weenen area alone it is reported that about 22 000 people were forcibly removed from Weenen into relocation sites in Msinga, 53 a nearby black area. In some cases people were relocated to sites right next to their former homes and grazing land. Although people were generally prevented from taking their livestock with them, some managed to smuggle their livestock into Msinga, which offered nothing but desolation. Since there was insufficient grazing land in the overcrowded and underdeveloped areas in which they were constrained, the livestock strayed back onto the now only white farms, the animals old grazing grounds. 54 [41] In search of grazing land for their livestock African people found themselves trespassing on land, which they saw as historically theirs. Therefore they also saw livestock impounding as illegitimate. White farmers, on the other hand, saw livestock impounding as their only peaceful recourse to discourage the poaching of grazing or trespass by livestock 55 on their legally owned land. The nature of this conflict in the Weenen area has perhaps been accurately described by one farmer as follows: It is 52 Kockott The Fields of Wrath, Cattle Impounding in Weenen, Special Report no. 8 (The Association For Rural Advancement (AFRA) and the Church Agricultural Project (CAP), 1993) 27-28. 53 Id at 24. 54 Id at 21-29. 55 Id at 17. 21
simple. It s a struggle for land. A struggle between the haves and the have-nots. And the haves don t have that much anyway. 56 [42] In this historically tragic setting, livestock impounding still provides some farm owners with a means to discourage the poaching of grazing or trespass by livestock. It is in this historical and current context that the impounding scheme of the Ordinance operates. The impounding scheme of the Ordinance [43] In order to appreciate the effect of the challenged provisions and to evaluate the cogency of the constitutional challenge, it is necessary to have some understanding of the impounding scheme. The scheme has a number of provisions. For present purposes, a brief outline of the basic functioning of the scheme and the main provisions will suffice. In particular, the provisions of the Ordinance are described without considering the proper interpretation to be attached to them in the light of the Constitution and PAJA. What follows does not therefore purport to be an authoritative analysis of any provision of the Ordinance that is referred to in the course of this introduction. This is no more than a summary of the main provisions of the Ordinance. [44] The Ordinance was promulgated in 1948 by the Provincial Council of the Province of Natal. In terms of Proclamation 107 of 1994 published in Government 56 Id at 18. 22
Gazette 15813 of 17 June 1994, the administration of the whole of the Ordinance was assigned to KwaZulu-Natal with effect from 17 June 1994. This was done pursuant to the provisions of section 235(6) 57 and 235(8) 58 of the interim Constitution. 59 In terms 57 Section 235(6) of the interim Constitution provides: The power to exercise executive authority in terms of laws which, immediately prior to the commencement of this Constitution, were in force in any area which forms part of the national territory and which in terms of section 229 continue in force after such commencement, shall be allocated as follows: (a) All laws with regard to matters which (i) do not fall within the functional areas specified in Schedule 6; or (ii) do fall within such functional areas but are matters referred to in paragraphs (a) to (e) of section 126 (3) (which shall be deemed to include all policing matters until the laws in question have been assigned under subsection (8) and for the purposes of which subsection (8) shall apply mutatis mutandis), shall be administered by a competent authority within the jurisdiction of the national government: Provided that any policing function which but for subparagraph (ii) would have been performed subject to the directions of a member of the Executive Council of a province in terms of section 219 (1) shall be performed after consultation with the said member within that province. (b) All laws with regard to matters which fall within the functional areas specified in Schedule 6 and which are not matters referred to in paragraphs (a) to (e) of section 126 (3) shall (i) if any such law was immediately before the commencement of this Constitution administered by or under the authority of a functionary referred to in subsection (1) (a) or (b), be administered by a competent authority within the jurisdiction of the national government until the administration of any such law is with regard to any particular province assigned under subsection (8) to a competent authority within the jurisdiction of the government of such province; or (ii) if any such law was immediately before the said commencement administered by or under the authority of a functionary referred to in subsection (1) (c), subject to subsections (8) and (9) be administered by a competent authority within the jurisdiction of the government of the province in which that law applies, to the extent that it so applies: Provided that this subparagraph shall not apply to policing matters, which shall be dealt with as contemplated in paragraph (a). (c) In this subsection and subsection (8) competent authority shall mean (i) in relation to a law of which the administration is allocated to the national government, an authority designated by the President; and (ii) In relation to a law of which the administration is allocated to the government of a province, an authority designated by the Premier of the province. 58 Section 235(8) of the interim Constitution provides: (a) The President may, and shall if so requested by the Premier of a province, and provided the province has the administrative capacity to exercise and perform the powers and functions in question, by proclamation in the Gazette assign, within the framework of section 126, the administration of a law referred to in subsection (6) (b) to a competent authority within the jurisdiction of the government of a province, either generally or to the extent specified in the proclamation. (b) When the President so assigns the administration of a law, or at any time thereafter, and to the extent that he or she considers it necessary for the efficient carrying out of the assignment, he or she may 23
of Proclamation 5 of 13 June 2003, the administration of the Ordinance was entrusted to the provincial member of the executive council responsible for local government, the MEC. [45] The Ordinance puts in place a scheme which provides for the immediate impoundment of trespassing animals and their disposal. Section 16(1) permits a landowner to impound animals found trespassing on his or her land. The landowner is not expressly required to give any notice to the livestock owner unless the livestock owner happens to be the owner of land immediately adjacent to that of the landowner and the animals bear the registered brand of its owner. In such a case, the livestock owner is entitled to 12 hours written or verbal notice of trespass. Other livestock owners are not expressly entitled to such notice. Even if they are known or could, with reasonable diligence, be established, it matters not. 59 See DVB above n 46. (i) amend or adapt such law in order to regulate its application or interpretation; (ii) where the assignment does not relate to the whole of such law, repeal and reenact, whether with or without an amendment or adaptation contemplated in subparagraph (i), those of its provisions to which the assignment relates or to the extent that the assignment relates to them; and (iii) regulate any other matter necessary, in his or her opinion, as a result of the assignment, including matters relating to the transfer or secondment of persons (subject to sections 236 and 237) and relating to the transfer of assets, liabilities, rights and obligations, including funds, to or from the national or a provincial government or any department of state, administration, force or other institution. (c) In regard to any policing power the President may only make that assignment effective upon the rationalisation of the police service as contemplated in section 237: Provided that such assignment to a province may be made where such rationalisation has been completed in such a province. (d) Any reference in a law to the authority administering such law, shall upon the assignment of such law in terms of paragraph (a) be deemed to be a reference mutatis mutandis to the appropriate authority of the province concerned. 24
[46] Once the cattle have been seized, they may be driven to the nearest pound to be impounded. The pound is operated by a poundkeeper, who operates the pound for profit if it happens to be a private pound. The poundkeeper is obliged without delay [to] receive into the pound... all animals which are tendered to him... for the purpose of being impounded. 60 The Ordinance does not expressly require the landowner to tell the poundkeeper who the owner of the livestock is, even if the landowner knows the livestock owner. The information that the landowner is obliged to furnish to the poundkeeper is the number and the description of the animals impounded, the land upon which they were trespassing, the distance between the place where they were found and the pound, and the trespass fees or damages claimed. 61 [47] The poundkeeper, in turn, is not expressly obliged to inform the livestock owner of the impoundment unless the livestock owner is known. 62 Where the livestock owner is not known to the poundkeeper, the latter is not explicitly required to establish who the owner is, even if the animals are distinguishably branded or marked or the owner of the animals could, with reasonable diligence, be ascertained. Yet in terms of section 18 63 of the Ordinance, these are the steps that the landowner is 60 Section 7 of the Ordinance. 61 Section 25(1) of the Ordinance. 62 Section 8 of the Ordinance states that: Whenever the name of the owner of any impounded animal is known to the poundkeeper he shall forthwith send through the post or otherwise a written notice addressed to such owner at his place of residence, informing him of the fact that such animal has been impounded. 63 Section 18 of the Ordinance provides: 25
required to take before a donkey or a pig found trespassing on his or her land can be destroyed. [48] Once the animals have been impounded, they can only be released upon the payment of driving fees, trespass fees or damages assessed in terms of section 29(1) of the Ordinance and all the impoundment fees and expenses incurred by the poundkeeper. 64 If the owner is known he shall be informed of such trespass but only for the purposes of enabling the livestock owner to nominate one of the two disinterested persons who are required to assess monetary damages caused by the trespassing animals, 65 each of whom shall either be a landowner or a voter as defined in section 1 of the Electoral Act, 1979. 66 [49] If the animals are not claimed, they may be sold to defray these expenses. 67 They need not be sold at their market value, but only at a price that is sufficient to recover all the amounts due under the Ordinance. 68 Any animal that remains unsold may be destroyed. 69 In the event of any balance remaining after the proceeds of the Notwithstanding anything to the contrary contained in this Ordinance, the owner of any land may destroy any donkey or pig found trespassing thereon unless it is distinctively branded or marked or unless he knows or can with reasonable diligence ascertain to whom it belongs. 64 Section 32 of the Ordinance. 65 Section 29(1)(a) of the Ordinance. 66 Section 29(1) of the Ordinance. 67 Sections 33 and 34 of the Ordinance. 68 Section 34(3) of the Ordinance. 69 Section 37 of the Ordinance. 26
sale have been applied to the fees and the expenses, that amount may be paid to the livestock owner if known, otherwise it is forfeited to the provincial government. 70 [50] The Ordinance does not expressly oblige anyone to tell the livestock owner about the sale. The livestock owners are expected to establish the sale of their livestock by going through the Provincial Gazettes or local newspapers. That the livestock owner may be illiterate matters not. Nor does it matter whether the livestock owner knows that he or she is required to find this information in this manner. Perhaps the livestock owner, though literate, does not understand the language of the local newspaper and thus receives news from Ukhozi FM or television, if he or she happens to have access to a radio or a television set. The livestock owner may not even be aware of the existence of the Provincial Gazette, let alone know how to find or read it. All of this matters not. [51] Ordinarily, in the context of a population that is generally literate, cognisant of their basic rights with reasonable access to skills, knowledge or resources, a public notice in newspapers circulating in the area may be legally sufficient to give notice. However, in the case of someone like Mrs Zondi, who belongs to a group of persons historically discriminated against by their government under the old order, which still affects their ability to protect themselves under the laws of the new order, different considerations may apply. A general public notice through the Provincial Gazette or local newspapers, in many such cases, may not be sufficient to give notice where a 70 Section 40 of the Ordinance. 27
large portion of the population which would be most affected by the notice is illiterate and otherwise socially disadvantaged. Mrs Zondi is indeed illiterate. The thumbprint mark she affixed to her founding affidavit bears testimony to this. [52] The Ordinance further provides that if an animal is too vicious to be driven to the pound, a police officer has the authority to issue instructions in regard to its destruction or other disposal as he may see fit, but only upon notice to the owner if he is known. 71 But if the viciousness only manifests itself after the animal is in the pound, the authority to give such instructions rests with the magistrate, after notice to the livestock owner if the owner is known. 72 The poundkeeper is required to record any injury to or death of the impounded animal as well as the cause of its death or injury. 73 These matters need only be entered in the pound book; nothing is said about notice to the livestock owner. [53] Against this background I now turn to consider the constitutional challenge. The constitutional challenge [54] In the course of oral argument in this Court, the applicant abandoned the attack on sections 8, 10(2) and 12 of the Ordinance, but persisted with the attack on sections 16(1), 29(1), 33, 34, 37 and 41(4). This Court, however, must still consider the 71 Section 41(4) of the Ordinance. 72 Section 10(2) of the Ordinance. 73 Section 12 of the Ordinance. 28
constitutional validity of all the provisions that were declared invalid by the High Court, including those in respect of which the applicant no longer seeks confirmation. [55] The constitutional complaint against sections 16(1), 33, 34 and 37 was that they permit seizure and impoundment of trespassing livestock and their subsequent sale in execution without judicial intervention and without notice to the livestock owner where the stockowner is not known. This was said to be a violation of the right of access to courts. Subsection (1) of section 29, the assessment of damage provision, was challenged on the ground that it had a discriminatory effect on African people. 74 Its landownership and franchise requirements were said to be designed to exclude African people from assessing damages for trespass. It was contended that this violated the right to equality. [56] The constitutional complaint against sections 37 and 41(4) was that they either do not make provision for notice to the stockowner at all or that they do not require steps to be taken to trace the stockowner where he or she is not known. This was said to be a violation of the right to just administrative action guaranteed in section 33 of the Constitution and a breach of the provisions of PAJA. 75 The applicant also contends that the impugned provisions violate other provisions of the Constitution. 76 74 See discussion at paras 87-97. 75 Above n 13. 76 Above n 5. 29